中美研究中心：美国国会的中国牌：对未来中美双边贸易和科技交流的影响（英）_47页_1mb

117th Congress' Legacy on China and Implications for Future Bilateral Trade and Technology Engagement

Core Content

The 117th Congress, under the Biden administration, has made China a central focus in its legislative agenda. The Congress has engaged in extensive discussions and passed several significant bills, particularly those related to trade, technology, and strategic competition with China. These legislative actions reflect both the enduring concerns of the U.S. regarding China and the new challenges emerging from the evolving geopolitical landscape.

The 117th Congress has not only advanced specific legislation targeting China but has also shaped the broader narrative of U.S.-China strategic competition. The CHIPS and Science Act, which was signed into law in 2022, is a key example of this legislative focus. While it was initially seen as a trimmed version of the more comprehensive "China competition bills," it has become a significant piece of legislation aimed at boosting U.S. semiconductor manufacturing and innovation.

The U.S. business community has played a crucial role in pushing for legislative action to address the global semiconductor shortage and support domestic manufacturing. However, their focus has been on increasing incentives and improving competitiveness, rather than directly countering China.

Main Points

• China as a Central Issue: The 117th Congress has prioritized China in its legislative agenda, with over 798 bills and resolutions mentioning "China" by October 2022, more than under the Trump administration.

• Legislative Efforts: The Congress has proposed and passed several bills related to trade, technology, and strategic competition, including the CHIPS and Science Act, the Infrastructure Investment and Jobs Act, and the Inflation Reduction Act. These bills are often framed as part of the "China competition bill series."

• CHIPS and Science Act: This act was signed into law in 2022 and includes provisions aimed at boosting U.S. semiconductor manufacturing and innovation. It was derived from earlier bipartisan efforts and includes funding for research, development, and supply chain security.

• Business Community Influence: The business community, including the Semiconductor Industry Association and the U.S. Chamber of Commerce, has strongly supported legislation to address the semiconductor crisis and enhance U.S. competitiveness. However, their concerns are largely domestic in nature, not directly aimed at countering China.

• Public Opinion and Political Climate: The deterioration of public opinion on China in the U.S. has influenced the legislative agenda, with many bills framed in terms of countering China's rise. This has led to an overemphasis on the "China factor" for domestic political gains, often resulting in heightened tensions and a lack of balanced policy approaches.

• Future Implications: The 118th Congress is expected to inherit the complex legacy of the 117th, including the ongoing strategic competition, human rights issues, and the potential for further escalation in trade and technology policies. The upcoming midterm elections and presidential race will shape the direction of U.S. policy towards China in the coming years.

Key Information

• The CHIPS and Science Act was signed into law in 2022 and includes $52.7 billion in funding over five years to incentivize U.S. semiconductor manufacturing and innovation.

• The act was derived from earlier legislative proposals, including the Endless Frontier Act and the America COMPETES Act, which aimed to enhance U.S. research and innovation capabilities.

• The act includes provisions for various federal agencies, such as the Department of Commerce, the National Science and Technology Council, and the Department of Defense, to support semiconductor manufacturing and supply chain security.

• The business community has emphasized the need for government incentives to address the semiconductor crisis and support domestic manufacturing, but has not explicitly called for measures targeting China.

• The 117th Congress has also been involved in shaping policies related to human rights, supply chain resilience, and international security, with some measures overlapping with trade and technology engagement.

• The failure of the 117th Congress to pass a comprehensive "China competition bill" has led to a focus on specific, more manageable legislative packages, which may limit the scope of policy action.

Tables and Provisions

Table I: Select Provisions Shared by USICA and AmCOM but Excluded from the CHIPS and Science Act

Table II: Manufacturer's Top Choice of Provisions to be Included in a China Competition Legislation

Conclusion

The 117th Congress has significantly shaped the U.S. approach to China through a series of legislative actions, particularly in the areas of trade, technology, and strategic competition. The CHIPS and Science Act is a key example of this legislative focus, reflecting both the bipartisan effort to address the semiconductor crisis and the broader narrative of countering China's rise. As the U.S. moves towards the 118th Congress, the legacy of the 117th will continue to influence the trajectory of U.S.-China relations, especially in the context of increasing domestic political tensions and the need for more balanced and coordinated policies.